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STATE OF MINNESOTA 
Department of Education 

Teacher Shortage 
and Salaries 



Report of Proceedings 

BY 

State Board of Education 




SAINT PAUL 
April, 1920 



®o 9£ £. 

OCT £ mm 









STATE BOARD OF EDUCATION 



W. D. Willard : President 

Cashier First National Bank, Mankato 

Julius Boraas i Professor of Education 

St. Olaf College, Northfield 

Thomas E. Cashman President Clinton Falls 

Nursery Company, Owatonna 

Mrs. R. D. Musser Little Falls 

J. VV. Hunt, Attorney-at-Law •. Duluth 



James M. McConnell Commissioner of Education, Secretary 

and Executive Officer of the Board, 

Historical Society Building, St. Paul 

P. C. Tonning Deputy Commissioner 



REPORT OF PROCEEDINGS 

For the information of all concerned and especially of school boards, 
this bulletin is published, giving a statement of what has been done by 
and under the direction of the State Board of Education in the teacher, 
shortage and salary emergency which confronts the state. 

It is the purpose of the State Board in this, as in other problems 
that may arise, to furnish such leadership and give such assistance as 
ij: may be able to the end that the schools of the state may be main- 
tained at their highest efficiency. It bespeaks the cooperation and hopes 
for the confidence of school boards, superintendents and teachers 
throughout the state in its efforts to achieve this purpose. 

At its quarterly meeting, January 5, 1920, the Board discussed at 
length the question of restoring standards of teacher certification and 
of raising the minimum salaries paid in state aided schools. The mat- 
ter was referred to the Commissioner for recommendation at a special 
meeting. 

The special meeting was held on January 26, 1920, all members 
being present, and the following resolutions were adopted: 

That school boards and superintendents throughout the 
state be notified that it will be the policy of the Department of 
Education for the school year 1920-21 to adhere to the re- 
quirements for teacher certification and standards set forth 
in the printed rules of the State Board of Education: that 
renewals of permits now in force to persons not fully qualified 
will be granted only on evidence of satisfactory teaching and 
continued professional progress by attendance at summer 
sessions of the State Normal Schools or College of Educa- 
tion: that such permits will not be granted to new appli- 
cants except on request of school boards who are able to show 
to the satisfaction of the Department of Education that they 
have made every effort to secure fully qualified teachers and 
have offered reasonable salaries for the same, and when the 
Department finds that qualified teachers are not available 
for such positions. 

That a letter be sent to all school boards in the state 
informing them of the emergency that exists in the shortage 
of qualified teachers and the consequent necessity of raising 
salaries to a standard that will induce young men and women 
to enter the work of teaching and retain persons of ability 
now employed: that the Board of Education call a confer- 
ence of all school boards in the state to consider the problem 
of teachers' salaries in the hope that a state wide policy 
may be adopted that will lead to its solution: that this meeting 
be called immediately following the report to be made at the 
annual meeting of Superintendents held in Minneapolis, 
March 31-April 2, of a Committee appointed by the Minne- 
sota Educational Association to investigate Teachers' Salaries 
and Living Expenses in Minnesota 



In compliance with the order of the Board, the following letter, 
under date of February 10th, was sent to all school boards in the state: 

To All School Boards in Minnesota: 

The State Board of Education extends greeting to all 
school boards in Minnesota and begs to bring to their attention 
what it believes to be an emergency in the educational situation. 

An inquiry made some two months ago by the Department 
of Education showed more than 300 school rooms or depart- 
ments closed because.no teachers could be obtained. It also 
showed more than 1,800 teachers employed in positions for 
which they do not possess full qualifications, according to 
standards set up before the war. It showed further that while 
in the year 1916-17, the State Normal Schools graduated more 
than 750 students and the High School Training Departments 
almost 1,450, the same institutions will this year graduate less 
than 600 and 1,000 respectively. Nor is the showing for high 
school teachers much better. While colleges and universities 
are overflowing with students, the schools which train teach- 
ers have not regained their pre-war enrollment. This means 
that young men and women are not now preparing to teach. 
Furthermore, besides those who left the work during the 
war, relatively few of whom have returned, we are steadily 
losing to other more attractive fields our best superintendents 
and teachers. The conviction is widespread and well founded, 
not only that teaching does not pay, but that it does not 
furnish a living. 

The problem presented is one that cannot be avoided by 
those who are burdened with the responsibility for adminis- 
tering our schools. The education of the children of the 
state is at stake at a time when the need of education was 
never more apparent. It is our business to see that the best 
minds and the best personalities teach the children of Minne- 
sota. 

The question seems to be mainly one of salary, and that 
we may know exactly what the situation is .and so far as 
it is possible determine the best solution of the problem, the 
State Board of Education suggests a conference of all the 
school boards in Minnesota to consider definitely the question 
of teachers' salaries. 

Since a committee appointed by the Minnesota Educa- 
tional Association is now investigating the question through- 
out the state, and will report at the annual meeting of super- 
intendents, held in Minneapolis, March 31 to April 2, it 
would seem best that the conference be deferred until this 
report is in. It may be possible to hold the conference during 
the closing days of the Superintendents' meeting. 

It is hoped that the boards throughout the state in all 
grades of schools will realize the seriousness of the situation 
and will see that they are represented at this conference. 



The Board would appreciate an expression of your opinion 
as to the wisdom of calling such a conference. Later and 
definite notice will be given. 

Very truly yours, 

J. M. McCONNELL, 
Secretary State Board of Education. 

The replies received, with almost no exception, favored the Con- 
ference, though many favored calling it at an earlier date. The desira- 
bility of awaiting the report of the Committee appointed by the Minne- 
sota Educational Association to investigate teachers' salaries and 
living expenses was usually admitted. 

Under date of March eighth, a second letter was sent, calling the 
Conference for Saturday, April third, at 10:00 a. m., at the University 
Farm in St. Paul. 

An opinion of the Attorney General holding that a board might 
charge the expense of its delegate to the district or that several dis- 
tricts might share in the expense of sending a representative was cited. 

An invitation was also extended to board members to attend the 
Friday afternoon session of the Superintendents' Meeting, when a 
preliminary report of the Committee appointed by the State Board 
of Education to study the question of state aid would be presented, and 
also a report of the Committee appointed by the Minnesota Educational 
Association to investigate teachers' salaries and living expenses. Many 
school board members attended this session and also the annual dinner 
in the evening, to which they were invited. 

Saturday morning, April third, at the University Farm, the State 
Board held an informal meeting at which they approved a recommenda- 
tion to the Conference of the minimum schedule previously considered. 

At the time appointed for the School Board Conference, the large 
auditorium was filled to its capacity, the balcony being occupied, 
mostly by superintendents. Not fewer than eight hundred board 
members were present from all parts of the state. A "please stand" 
estimate indicated that probably a majority represented rural districts. 
The others were from districts having high and graded schools, ranging 
from the smallest to some of the largest. 

At 10:15 a. m., President Willard of the State Board of Education 
called the Conference to order and stated its purpose and the importance 
of the matters under consideration. He then introduced Commissioner 
James M. McConnell, who presented the situation in the following 
address: 

1. Purpose and Plan of Meeting. 

As a people we are committed to the doctrine that public educa- 
tion spells public welfare. 

This conference has been called in the interest of public education. 
It is no part of a campaign. It is a business meeting, called for the 
purpose of dealing in a sane and business-like way with a real situation. 
It is a situation which concerns every American citizen, but the re- 
sponsibility for meeting it rests squarely upon those who are represented 
here this morning. 



The emergency of war and the unrest and uncertainty of recon- 
struction through which we are passing have impressed anew upon all 
thinking people the value of public education and the immediate 
necessity of strengthening and extending it to meet existing conditions. 

The various schemes for Americanization now so seriously under- 
taken by public spirited citizens and institutions are only efforts to 
reach the spots that seem to have been missed in our scheme of public 
education. 

Here is the problem that confronts us. At a time when the schools 
are called on to do more and do it better; when reduced efficiency is 
unthinkable for those who have the country's welfare at heart, we 
acknowledge the fact of a shortage of teachers which has closed 
many schools and greatly lowered the efficiency of others. Instead 
of being stronger to meet the new demands we are weaker. There 
is in the country at large and in Minnesota a lack of competent teach- 
ers which, if allowed to continue, will wreck our public schools, either 
by closing them or by filling them with inefficient teachers. 

This is the ground on which this conference is called. It is our 
plan to put before it the facts as we have been able to get them and to 
to make such recommendations in the light of these facts as have com- 
mended themselves to our judgment. It is our purpose to have free 
discussion and our hope that the conference may result in the best 
conclusions that can be reached. 

The Governor of an eastern state where the stituation is not worse 
than in Minnesota has stated the case by saying: 

"If our children are to be taught by incompetent teachers, or not 
at all, the end of American democracy is in sight." 

The president of one of our leading colleges has expressed it by 
saying: 

"We are facing the annihilation of a profession." 

II. The situation in the country at large and in Minnesota. 

1. The shortage of teachers in schools and lack of qualifications. 

The Secretary of the Interior reports that 143,000 out of approxi- 
mately 650,000 teachers in the United States resigned last year on ac- 
count of inadequate pay. The National Education Association states 
that more than 100,000 teaching positions in public schools in the 
U. S. are either vacant or filled by teachers below standard. This num- 
ber is 16% of the teaching positions in the country, of which 6% repre- 
sents vacancies and 10% teachers not fully qualified. Both shortage 
of teachers and lack of qualifications are naturally greatest in rural 
districts and in communities where salaries are lowest and living condi- 
tions least favorable. 

California reports a combined shortage and below standard, 3%%. 

Massachusetts reports a combined shortage and below standard, 

4H%- . ■ 

Illinois reports a combined shortage and below standard, 7%. 

Six southern states report a combined shortage and below standard, 
33 1-3 %. 

Minnesota reports a combined shortage and below standard, 11 H%. 



2. Shortage in enrollment and graduates in schools preparing teach- 
ers. 

a. In the United States. 

While colleges and universities are overflowing with students, 
schools for the training of teachers have generally not reached their 
pre-war enrollment. It is -reported that in 78 normal schools and 
teacher training schools in 35 states, the enrollment in 1916 was 33,051, 
and the number of graduates 10,295. In 1919 in the same schools, the 
enrollment was 26,134 and the graduates 8,274. In the graduating 
classes of 1920, the present year, the number is only 7,119. This shows 
a decrease of 30% of graduates in four years. Attendance has de- 
creased 20% in three years. Commissioner John H. Finley of New 
York reports that attendance at the normal schools in that state has 
fallen off 40%, that teacher training institutions have not over 60% 
of their pre-war enrollment. It is stated that the class of 1896 of Yale 
University produced 33 teachers; that of 1904 produced 19; and that of 
1919 produced 3. 

b. In Minnesota. 

In Minnesota in the year 1916-17, the normal schools graduated 
756 and for the year 1919-20, the estimate is 584, a falling off of 23%. 
In the year 1916-17, the high school teacher training departments 
graduated 1,441, and the estimate is 976 for 1919-20, a falling off of 32%. 

It is estimated that in ordinary times graded schools require 
1,250 new teachers annually and the rural schools 2,200. Comparing 
these figures with the graduates in sight, the number of trained teach- 
ers for these schools will be less than 50% of the demand. The high 
school and special teacher situation is not materially better, but is 
more difficult to estimate, since this group of teachers is secured from 
many different sources. 

The fact is, that large numbers of young persons who should be in 
the training schools, and ordinarily would be, may be found among 
the more than 1,800 who have been allowed to teach with less than the 
standard qualifications in order to keep from actually closing a larger 
number of schools. They are the immature and raw recruits whom 
we have had to send into the ranks to hold places which in these times 
demand veterans. As someone has well expressed it in a different way, 
"we are grinding our seed wheat." An important part of the prob- 
lem before this conference is to stop this abuse. To do so, school 
boards must cooperate with the Department of Education by not 
asking for concessions in certification until they have made every ef- 
fort to secure qualified teachers. 

3. Causes and remedies. 

Doubtless the war and the unsettled and unusual economic and 
industrial conditions through which we are passing have been factors 
in producing the situation as we find it. To that extent, the condition 
will correct itself. The prime cause, however, is one of lack of re- 
muneration. Teachers' salaries have always been low. But with the 
diminishing value of the dollar and the mounting cost of living, the 
situation for the teacher in service became critical. Happily for the 
teachers and unhappily for the schools, economic and industrial pros- 



perity furnished a way out. Teachers, men and women, have gone 
and ~are going by the thousands, many of them to incomes beyond 
their wildest dreams. Private employers have discovered in teachers 
the highest grade of ability and they are drawing on it to the utmost; 
and men and women who are able to teach have found themselves in 
demand for other lines of work. Not only so, but young men and 
women are no longer entering the work, since teaching does not pay 
in proportion to the demands it makes in extent of preparation, as well 
as in the work to be performed. Almost no young men are prepar- 
ing to be teachers. In Minnesota in 1915, the ratio of men to women in 
high and graded districts was 1:5.6; in 1919, it was 1:8. In the rural 
districts in 1915, it was 1:15; in 1919, it was 1:35. 

"The medium salary paid to all elementary and high school teach- 
ers, including special teachers, supervisors, heads of departments and 
principals in 392 cities of the United States in 1918-19 is 40% below 
that paid the skilled and unskilled laborers and employees in fac- 
tories and shops where the greater number employed are women and 
girls." Comparisons tending to establish the undesirable economic 
situation of teachers are endless. What the conditions are in Minne- 
sota will presently by shown by members of the Committee of the 
Minnesota Educational Association appointed to investigate. 

To come to the remedy. Some means must be found to retain and 
replenish the supply of teachers or the cause of public education for 
which you and I are officially responsible must be seriously handicapped. 
Some plan of action must be adopted. We could continue to lower 
the standards and let in the untrained and incompetent, as we have 
already done to too great a degree. This is unthinkable and the great 
majority of the people of Minnesota will so decide when once they have 
the facts. Our standards are not too high. They are not higher than 
they were five years ago. We must have well trained teachers. There 
may be a few "natural born teachers" who succeed without much 
training. Let me remind you, however, that the birth rate of such per- 
sons is singularly low and the matrimonial mortality alarmingly high. 

Another and a better suggestion is to meet the situation in a busi- 
ness-like way and pay what competent teaching service costs. Not 
only so, but to establish a liberal policy that will encourage young men 
and women to enter the profession and will attract teachers into the 
state, as well as hold those now in the work. When our salaries are lower 
than those of adjoining states, as they have been, we lose teachers to 
them. When ours are higher, as we hope they will be, we draw from 
them. The objection to this plan is the wrath of the overburdened 
taxpayer. But the answer to this is clear — we shall have to choose now 
between the wrath of the taxpayer and the wrath to come, if we neglect 
our plain duty. 

The schedules received from many schools which have already elect- 
ed their teachers indicate a liberal policy — one that gives encouragement 
for the solution of the problem. Twenty out of the thirty-two graded 
and high schools reporting next year's schedules to the Department 
have adopted minimum salaries ranging from $110 to $135 for grade 
teachers; and twenty-three out of the twenty-seven high schools re- 



porting have adopted minimum salaries ranging from $125 to $150 for 
high school teachers. These reports are from the small or middle sized 
towns and cities, mostly in the agricultural sections of the state. Seven- 
teen of the schools are located in villages of less than a thousand and 
thirty-two in villages or cities of less than ten thousand. The Twin 
Cities or "range towns" are not included. No reports have been re- 
ceived from rural schools, since it is not their practice to elect so early. 

Permit me to say in this connection that a somewhat widespread 
impression that the normal schools and teacher training institutions are 
responsible for a salary raising program and that boards are being held 
up accordingly is without foundation. The law of supply and demand 
is in control of the situation, and this, together with a realization by 
school boards of the condition and their disposition to meet it squarely, 
is responsible for the salaries paid. 

4. The problem of determining a schedule. 

It is not a simple matter to determine a schedule of salaries that 
will meet all conditions. 

It is understood that there is a large element of .the altruistic in 
the work of teaching and that those who enter on it do so without the 
expectation of becoming rich. However, this feature has been over- 
done. Conditions have changed with growing demands laid on the 
schools. In the old days, when professional standards for teaching 
were low or lacking, the young man on his. way to some other calling 
used teaching as a stepping stone. He could then afford to take a young 
man's salary. Nor did young women enter seriously on the work, as 
one which should give them full and perhaps permanent occupation. and 
support. Now, the greatly broadened scope of school work demands 
trained men and women who are, or who are preparing to become, pro- 
fessional teachers. If. we get them and keep them, they must be paid 
enough for their support throughout the year and something for cul- 
ture and saving besides. Not only so, but the outlook must be per- 
manent and promising. Conditions vary from rural districts to the 
large cities and no uniform schedule could be adopted. 

The Michigan committee on teachers' salaries suggests that each 
community make an exact estimate of the total monthly expensess 
of the average woman grade teacher for board, room and laundry. 
Add 45% to this amount to cover clothing, insurance, church, charity, 
physician's bills, railroad fare, etc., and multiply this total by 12 to 
secure necessary expenses for the year. For it must be remembered 
that teachers have to live 12 months, whether school keeps or not. 
To this total add 10% for saving. Additional allowance should be made 
for training, experience, and special merit. 

In keeping with the present "cost plus" method of letting contracts 
the scheme has much to commend it. 

In any case, there are three outstanding factors that must be taken 
into consideration in determining teachers' salaries; they are training, 
experience and efficiency. The first two points can be determined 
by fixed standards; the third is a local and individual question. Also 
it must be remembered that any minimum that may be adopted stands 
for the weakest teacher of the group in the poorest school. It could 

10 . 



not at the same time be a minimum for the better teachers in the 
better schools. Again, living expenses enter in as a large factor. 

The Board of Education in order to arrive at what may seem to be a 
fair minimum schedule have agreed to a recommendation which I will, 
now submit: 

Less than 2 yrs.' Two yrs.' experi- 

(1) Teachers Holding experience — ence or more — 

Per Month Per Month 

Second class certificate $65 $65 

First class certificate 75 85 

High School Training Certificate 85 95 

Certificate for one year State Normal 

Training 85 95 

State Normal Diploma (2 year) 100 120 

State Normal Diploma (3 year).... 110 130 

Certificate on A. B. or equivalent 

College Degree 120 140 

Note — Experience under this rule shall mean experience in pub- 
lic schools after the granting of the diploma or certificate to which the 
minimum salary applies. A year of experience shall mean a minimum 
of eight months' actual teaching, but in no case can credit for more 
than a year's experience be granted in any calendar year. 

(2) Principals and Superintendents. 

Graded School Principal, classified as elementary teacher, $1,200 per yr. 

Graded School Principal, classified as H. S. instructor 1,500 per yr. 

Superintendent of High School '. 2,000 per yr. 

It will be noted that this schedule recognizes experience, and also 
professional training and progress. 

1. No increase in salary is provided through experience for the 
second grade teacher, because any teacher worth having will not long 
continue to be a second grade teacher. 

2. The salary for a first grade teacher at the end of two years 
equals only the initial salary of either the graduate of the high school 
training department or the teacher who has completed one year in a 
state normal school. 

3. The graduate of the' two year course in the State Normal School 
is given an initial salary above the teacher of two years' experience, but 
with a year less of training. The purpose of this is to encourage the 
completion of professional training. 

4. For each additional year of training $10 per month is added for 
additional salary. 

5. Since two years is the accepted probation period, no provision 
is made for increase at the end of one year; though, in practice, boards 
may often find it desirable to modify this. 

6. Ten dollars per month per year for two years' experience is not 
too much. The trouble has been more that of too little and too slow 
advance in salaries, rather than too low initial salary. 

11 



7. No provision has been made to carry advances beyond that pro- 
vided at the end of the second year of experience, though such advances 
should be made. For how many years increases should be made or in 
what amounts, we have not undertaken to say. Probably no general 
rule could be laid down, since local conditions, such as size of school 
and ability to pay, would have to enter in. Professional progress while 
in the service should be a large factor. Long experience with no pro- 
fessional growth becomes a liability instead of an asset in a teacher's 
standing. 

8. The schedule has been based on recognized certificates or de- 
grees of training, together with experience. Teachers whose qualifica- 
tions cannot be so classified constitute a local problem and each board 
can best handle the question for itself on the basis of individual merit. 

9. Again the proposed schedule has been based on amount of train- 
ing and experience, regardless of whether it is to apply in town or coun- 
try, in grades or high school. 

10. In the matter of principals and superintendents, no explana- 
tion is necessary, since this becomes pretty largely an individual ques- 
tion. 

Charts prepared in the Department of Education were displayed 
in order to make the figures presented more significant. These are not 
included in this report. 



12 



Report of the Committee Appointed by the Minnesota Educa- 
tional Association to Investigate Teachers' Salaries and 
Living Expenses. 

President Willard introduced President J. C. Brown of the St. 
Cloud Normal School and Mr. Robert Cowling of South High School, 
Minneapolis, who presented the findings of the Committee of the 
Minnesota Educational Association appointed to investigate teachers' 
salaries and living expenses. 

The report presented was based on replies to questionnaires sent 
to all teachers in the state and on information furnished by superin- 
tendents, county and city, concerning comparative incomes in other 
occupations. A brief summary of the figures shown is here included. 
This summary is made up from replies of several thousand teachers, 
exclusive of the Twin Cities, Duluth and the "Range Towns." 

TEACHERS' SALARIES AND EXPENSE STATISTICS 

(Numbers in bold type indicate number of teachers considered in 
each group.) 

TABLE I 









PER CENT 


POSITION 




SALARIES 


OF INCREASE 




1915-16 


1919-20 


1920 over 1916 


Supt. State 


$1451 


$1906' 


31.3 


High School 


86 


123 




Principal State 


1218 


1400 


14.8 


Graded School 


87 


140 




High School 


814 


1125 


38.1 


• Principal 


57 


138 




High School 


687 


982 


42.9 


Teacher 


165 


540 




Departmental 


575 


858 


49.2 


Teacher 


93 


144 




Grade 


520 


803 


54.4 


Teacher 


823 


1729 




Rural 


420 


620 


47.6 


Teacher.... 


898 


3416 




Home 


644 


946 


45.3 


Economics 


37 


145 

1243 




Manual 


911 


36.4 


Training 


36 


93 




Commer- 


760 


1100 


44.7 


cial 


37 


60 

1209 




Normal 


812 


48.9 


Training , 


59 


58 




Agri- 


1100 


1716 


56.0 


culture 


18 


56 





13 



TABLE II 



TEACHERS' BUDGETS 

Supt. 
St HS 

Rent $343 

123 

Clothing 302 

116 

Board 382 

63 
Doctor 55 

and Dentist 117 

Church 48 

and Charity 117 

Recreation 55 

109 

Laundry 38 

97 

Insurance 99 

111 

Travel 58 

104 
Professional 50 

Improvement 115 

Miscellaneous 114 

110 
Total 1805 

Expenses 112 

Savings 279 

69 
Excess Expense 162 

over Salary 49 

Room and 33 

Board, Jan. 1919...:.... 22 

Room and 35 

Board Jan. 1920 24 



Prin. 


H. S. 


H. S. 


Dept'l. 


, Gradi 


2 Rural 


StGr 


Prin. 


Tchr. 


Tchr. 


Tchr. 


Tchr. 


$202 


$ 98 


$ 80 


$ 80 


$ 67 


$ 58 


101 


97 


311 


82 


728 


266 


208 


262 


262 


238 


261 


194 


127 


153 


501 


138 


1622 


3094 


310 


255 


252 


243 


241 


162 


80 


134 


458 


133 


1371 


2895 


45 


27 


25 


28 


26 


21 


133 


146 


471 


140 


1539 


2996 


23 


29 


22 


17 


17 


13 


129 


152 


501 


117 


1606 


3121 


36 


46 


37 


25 


28 


19 


122 


137 


486 


130 


1461 


2212 


30 


29 


24 


25 


27 


14 


113 


141 


442 


117 


1289 


957 


38 


24 


10 


22 


8 


7 


133 


136, 


448 


108 


1207 


2302 


55 


58 


50 


40 


41 


22 


123 


137 


480 


126 


1438 


2429 


34 


23 


19 


16 


16 


16 


122 


141 


435 


127 


1396 


2749 


59 


56 


59 


53 


51 


34 


114 


138 


463 


127 


1447 


2598 


1206 


987 


932 


795 


787 


552 


135 


145 


443 


126 


585 


2634 


233 


113 


113 


85 


96 


110 


68 


80 


237 


66 


720 


1548 


207 


118 


119 


180 


105 


76' 


51 


69 


227 


75 


956 


916 


28 


29 


30 


28 


28 


18 


63 


115 


388 


113 


1265 


2339 


35 


34 


35 


33 


32 


21 


60 


121 


447 


115 


1321 


2047 


TABLE III 











TEACHERS' SALARIES COMPARED WITH 
OTHER SALARIES 



TRADES 

Carpenter $1507 

Mason 1797 

Plumber 1847 

Machinist 1801 

Barber 1615 

H. S. Teacher 982 



PROFESSIONS 

Doctor ! $5010 

Dentist '. 3480 

Lawyers 3552 

School Supt 1906 



14 



MISCELLANEOUS COUNTY OFFICERS 

Maids, Living and $ 469 Auditor (plus fees) 

Cooks, Living and 775 

Stenographers 989 Treasurer (plus fees) 2347 

Bookkeepers 1 124 

Store Clerks 945 Register (plus fees) 2976 

Section Men 1117 

Teamsters 1272 Sheriff (plus living) 1980 

Farm hands, Living and 827 

Day laborers 1107 Supt. Schools ...1798 

Grade Teachers 803 (Minus traveling .expenses 

Rural Teachers 620 in many cases.) 

President Willard introduced Dr. Lotus D. Coffman, Dean of the 
College of Education of the University of Minnesota and President of 
the Minnesota Educational Association, who had been invited by the 
State Board of Education to address the Conference. Dean Coffman 
spoke in part as follows: 

You have learned today that A/Iinnesota is facing an enormous 
shortage in her teaching force, that thousands of teachers are unable, 
even when they exercise the strictest economy to "make both ends 
meet," and that the morale among teachers is constantly declining. 
These are serious matters. 

It should be recalled that for four long years of war the teachers 
of this state and of other states loyally and patriotically supported the 
government. They gave all that they possessed of strength and money. 
During the first two years of this period their salaries were increased 
scarcely a cent and during the last two only by insignificant amounts. 
They saw the cost of living mounting skyward; they felt its pinches; 
they exercised rare frugality, but never stinginess; they saw labor 
through the power of organization double, treble and quadruple its 
wages; they saw the prices of commodities double and treble; and yet 
they stood by their posts. The schools were never closed; there were 
no strikes among the teachers. The teachers preserved the secondary 
line of defense without a break. When civilization was hanging in the 
balance on the plains of Flanders and among the hills of Picardy, the 
teachers of this country were preparing a new and more enlightened 
civilization in the schools of America. 

But the cost of living did not stop increasing with the signing of the 
armistice. On the contrary it is higher today than it was a year ago. 
And as a consequence the teachers are finding it harder, in many cases 
quite impossible, to meet their necessary expenses out of the salaries 
they receive. Moreover, business opportunities, always alluring, are 
increasing in number and many teachers are accepting them. The result 
is that the situation is gradually growing worse instead of better, and it 
will be worse next year than it is this unless heroic measures are taken. 

The State Department very wisely attempted to ease the schools 
through the war by certificating many teachers known not to be properly 
qualified. A continuance of this policy indefinitely will spell disaster. 
It will do two things: (1) it will lower the morale and increase the dis- 

15 



content of teachers. Seeing no rewards ahead for professional training 
and superior skill the unusually competent will leave teaching. With 
the foundations of professional standards literally destroyed, the whole 
educational superstructure will totter and eventually fall. (2) It will 
create the feeling that teachers are mere hirelings. Schools will actually 
be sold to the lowest bidder. But that is not the worst feature of the 
situation: The worst feature is that the future, the potentiality of 
thousands of children at the time when they are most impressionable to 
instruction in right ideals, will be sold to the lowest bidder. And when 
that bidder is known to be a person who cannot meet the minimum 
requirements of the state, we have a case of the blind leading the blind. 
To perpetuate this practice means that we shall be selling the future 
of the state and the birthright of the children for something worse than 
a mess of pottage. 

Truly the picture looks dark, but it becomes even darker and more 
depressing when we consider the situation in Minnesota in relation to 
that of the rest of the country. There are in the United States some 
70,000 teachers who never went beyond the eighth grade, and 300,000 
who never went beyond the public high school. More than 4,000,000 
children are being taught by teachers who are mere boys and girls and 
10,000,000 are being taught by teachers who have little or no conception 
of the enormous significance of the social, political and industrial prob- 
lems which the country is facing. In other words, millions of children 
are being taught by teachers who as yet know little or nothing about 
their duties and responsibilities as citizens. The enormous conse- 
quences of our failure to recognize this in the past is shown by the 
presence of 5,500,000 persons in the United States who cannot read and 
write the English language. This vast army of illiterates affords a fertile 
ground for the spread of discontent and dangerous propaganda. 

The United States of America with all her boasted wealth and with 
all the pride which she has in her traditional and historic ideals, is giving 
far less attention at the present time to the training of teachers than any 
of the great nations of the world. We have a smaller percentage of 
trained teachers than has England, France, Portugal, Peru or Alaska. 
We are letting down the bars and virtually saying, "We care little for 
standards; the thing that we are interested in primarily is keeping the 
schools open": but when schools, kept open, are staffed by the ignorant 
and unqualified, by the young and inexperienced, we are laying an inse- 
cure basis for the perpetuation of the government. 

The typical American teacher is a mere child. The great majority 
of the public school teachers of this country begin to teach at 18 years 
of age and most of them have left before they are 23 years of age. We 
have in the neighborhood of 150,000 vacancies in the public schools of 
America every year and this number is rapidly increasing. Next year 
we may confidently expect a quarter of a million vacancies. Teacher 
training institutions in this country will turn out less than 40,000 trained 
people. Pressure will be brought to bear to continue the practice which 
was indulged in during war times, that is, certification of those who are 
known to be incompetent. In general, although it is not always true, 
the first ones to leave teaching are the most competent, the superior 

16 



ones; the mediocre and poorly qualified are the ones who remain longest. 
Many state departments have declared that they have certificated 
thousands of boys and girls. Teaching, once a juvenile occupation, is 
now rapidly becoming an infantile occupation. |gj 

There is another aspect of the instability of the teaching population 
which is quite as grievous and that is the extreme mobility of teachers. 
Very few teachers remain in any given community very long. Enough 
changes occur in the typical American graded school in this state or in 
any other state in four years' time to equal the total number of persons 
teaching in that school during any one of these years. Enough changes 
occur in the typical American high school in three years' time to equal 
the total number of persons.teaching in that school of any of these years. 
In round numbers the entire administrative and supervisory staff of the 
state changes positions every four years. Eighty-six per cent of the 
country school teachers change location every year. Public school 
teachers are a species of intellectual tramps. They are wanderers upon 
the face of the earth. And why are they constantly on the move? 
Generally speaking, for two reasons: first, for promotion in rank; 
second, for advancement in salary. In many instances, the only method 
of advancement for a teacher is to move. The result is that few of them 
remain long enough in a given community to vote intelligently for candi- 
dates for local offices or to leave behind them any worthy traditions for 
intellectual work. 

The Commissioner of Education has already pointed out to you 
what the present shortage is and he has shown how that shortage will 
be increased in 1920 and 1921. There are a number of factors which 
will contribute to this. Some of them have already been discussed. 
We have referred to the increased cost of living and to the decrease in 
registration in the normal schools. In addition, however, it should 
be borne in mind that we have a very large annual turnover in the teach- 
ing population every year. About 4,000 teachers leave the teaching 
profession annually. It has been difficult in the past to fill their places. 
It will be impossible to do so next year. Minnesota has required about 
500 additions to her teaching population annually to keep pace with the 
growth in her population and with the establishment of new schools. 
This year one-fourth of all the students turned out by all of the teacher 
training institutions will be required to meet the normal growth of 
the teaching population of the state. 

It seems that no matter how we attack this problem we always 
come back to two conclusions: one is the increasing immaturity, 
inefficiency and incompetency of the teaching force; and the other is the 
inevitable pot of gold as the only means of relief. 

We face two dangers: one is that we may be governed by feelings 
of complacency and indifference in the present crisis and thus do noth- 
ing; the other is that we may rely upon the native strength of the com- 
mon citizen and refuse to place the proper valuation upon training for 
teaching. There was a time when training was not regarded as neces- 
sary, but those who have kept themselves in touch with the growth of 
public schools and the increasing complexity and multiplicity of educa- 
tional problems would not be disposed to employ as teachers those who 

17 



had no training. Bryce somewhere in his American Commonwealth 
points out that one of the defects of the American people is its over- 
valuation of the ability of the common man and its correlated under- 
valuation of training for particular forms of service. The national suf- 
ficiency of America is reflected in the story of the young man, who, 
when asked if he could play the piano, replied, "I don't know; I have 
never tried." 

If one could assemble all the teachers of Minnesota and have them 
march according to army regulations, eight abreast, eight paces apart, 
before a reviewing stand in which there were assembled together the 
members of the legislature and the executives of various clubs and 
associations, and public spirited citizens generally, and then if he were 
to arrange the teachers in groups according to their preparation, he 
would sit for more than three hours while the teachers who have had less 
than high school education passed by; he would sit for nearly five hours 
while those who have had but little more than a high school education 
were marching in review; for six hours he would watch the graduates of 
normal schools and for two hours and three-quarters he would look 
upon the college graduates. 

After eight long hours of sitting he would have watched a procession 
of about 8,000 teachers, who have had high school education or less; 
in other words, he would have seen four-tenths or forty per cent of the 
teachers of the state whose qualifications do not equal or surpass those 
of the boy or girl who is just graduating from the four-year high school. 
It would not be until late in the second day that he would see approach- 
ing a group whose banners show that they have both the normal school 
and college education. In developing this same figure the State Superin- 
tendent of Public Instruction of Illinois, says that at this particular 
point a voice from the reviewing stand might be heard to exclaim, "No 
person should be allowed to teach who is not at least a normal school 
graduate or a college graduate." Mr. Blair, in replying, says, "You 
are right. The greatest crime which is being committed upon the peda- 
gogical high seas today is that committed by a great commonwealth 
which forces by a drastic truancy law its children to go into a public 
school system to sit for six hours of the day, for nine months out of the 
year, for twelve years out of their life at the feet of ill-prepared and 
incompetent teachers. It is an old but truthful saying that no stream 
can rise higher than its source. Your teachers are the intellectual 
water-towers. The mental and moral stature of your children can hardly 
rise higher than that of those who instruct them." 

Then Mr. Blair raises the question who is to blame for this? He 
describes these teachers returning in reverse order before the review- 
ing stand. This time we read on their banners not the amount of 
training which they have had, but the salaries which they draw. The 
first group, consisting of 3,000 who have never had a high school train- 
ing, and the next group, consisting of nearly 8,000 who have had prac- 
tically no training beyond the high school, carry banners on which one 
reads, "Some of us receive an annual salary of less than $300 a year. 
The average salary paid the country teacher in Minnesota is $620; the 
city and grade school teachers, $803 a year." We must sit for hours 

18 



watching these thousands pass, not one of whom receives a salary in 
excess of $1,000 a year. 

Are those who have seen this picture likely to go away making a 
plea for their sons and daughters to take up teaching? From what 
source are we to get our recruits in teaching? Obviously from the high 
schools. Unless high school students can be inspired to enter the 
normal schools and colleges and universities with a vejw to preparing 
themselves for teaching, the situation is hopeless. Now, what are the 
inducements that we have to offer high school graduates to prepare 
themselves for teaching? We can go before them with the ancient 
aphorism that teaching is the most poorly paid but the most richly 
rewarded of all professions. We can point out to them the idealism 
that exists among those who take the vows of poverty. We can show 
them that after all, the material things of life are not the real things 
of life. True as these statements may be, important as they are, few 
men are willing and particularly few boys and girls will be so unwise 
or foolish as to select a work or profession that does not provide a living. 

The facts are that out of the thousands of high school graduates 
fewer and fewer of the talented are coming into teaching. Why is it? 
Mr. Blair suggests one of the possible explanations. He suggests that 
we permit the high school graduates to march down the streets and let 
them read the advertisements which are displayed on every hand. 
As they go by the employment offices, the boys read, "BOYS AND 
MEN WANTED: Carpenters from $1,200 to $2,000 a year. Masons, 
$1,400 to $2,200. Plumbers, $1,600 to $2,500. Section hands, $1,100. 
Teamsters, $1,200 to $1,600. Farm hands, $850. Men school teachers 
with normal school or college education, $685 to $1,400." No one can 
doubt the choice of the young men as they pass along the highways and 
read these employment signs. The boy not yet decided upon an occu- 
pation would reflect upon the respect in which teaching is held by the 
public as indicated by the pay the teacher receives. More than that, 
if he is at all thoughful, he would do some calculating as to his ability 
upon such salary to provide for himself a home and to support his chil- 
dren in comfort and safety on the plane commensurate with that of the 
children of the carpenter, the mason, the plumber or the farm hand. 

It will be observed that we have not called the attention of these 
marching boys to the signs showing the earning of men in other walks 
of professional life. Not until we place along the highways of life another 
employment sign, one that shows that a generous commonwealth is 
willing to pay an ample wage to every person who will prepare himself 
adequately for the difficult and importatnt task of training children that 
we shall have more and more of the high school graduates entering 
teaching. 

Now, what kind of employment signs do the high school girl gradu- 
ates see? They read in large letters, "WANTED — Stenographers, from 
$800 to $1,400 a year. Bookkeepers from $1,100 to $1,600. Store 
clerks, $960 up. Maids, $480 with board and room, to $1,200 with 
board and room. Trained nurses, $1,300 and upwards. Women 
elementary school teachers with normal school education, from $250 to 
about $900 a year." 

19 



Of course, it may be claimed that many teachers are now being 
paid more than they are worth. In this there is some truth, but the 
poor teacher, if she is paid anything, is paid more than she is worth. 
The effort to secure better salaries does not involve the securing of more 
pay for those who are not earning what they now receive. On the 
contrary, it involves securing more pay for the thousands who are now 
underpaid, making the salaries large enough so as to attract and retain 
talent and ability in the teaching profession. We should look forward 
to the time when the requirements for teaching should be raised, not 
lowered. A nation which lets its incapables teach it, while the capable 
men and women only feed and clothe or amuse it, is committing intel- 
lectual suicide, says one of the distinguished thinkers of this country. 

The day should come when we will require as much training for 
teaching as for any other profession. We should regard it as a calamity 
if the state of Minnesota admitted to the practice of medicine men with 
less than four years of professional training. We insist that those who 
are to care for our teeth must have four years of training in a professional 
school. The day is coming, if it has not already arrived in Minnesota, 
as it has in many other states, when a man who is certificated to engage 
in the practice of veterinary science must have at least four years of 
training beyond the high school. And so it is in every profession — 
medicine, dentistry, law, veterinary science, professional engineering, 
professional agriculture — in every profession except teaching. The 
standard should be as high in teaching as it is in these other callings. 

Now, what salary should a teacher receive? That is a question 
which Commissioner McConnell attempted to answer. It is clear, 
however, that there are many conditions and many'factors entering into 
the consideration of this question and that it is not always easy to 
determine the salary that we should pay. 

It is my judgment that any Board of Education in considering 
this question must be prepared to pay at least three and perhaps four 
salaries to its teaching force. The first salary which any teachers should 
receive is an existence salary. This should be large enough to pro- 
vide her with food, shelter, clothing, and with proper medical and 
dental care. She should have substantial and wholesome food, the 
kind of clothes which she should wear as a teacher, a comfortable room 
in which to work, and she should have such medical and dental care 
as will keep her physically fit for the work she has to do. The existence 
salary should not call for any luxuries, unnecessary or unusual expenses, 
but it should pay all necessary bills for the teacher for the year and by 
.that I mean for full twelve months, because teachers must eat and they 
must wear reasonably good clothes, and they must keep themselves 
healthy during the summer months. This is the first salary that a 
board of education should pay. 

The second salary which a teacher should receive is a savings or 
provident salary. We should pay her enough so that she can save for 
emergencies, protect herself in old age, and carry some insurance. How 
much has a public school teacher a right to save annually? She should 
be permitted to save enough so that at the end of thirty years of service 
the income from the money which she has saved would assure her a 

20 



reasonable living income the restof her life. If she is compelled to drag 
on year after year, and year after year, say ten, fifteen, twenty or 
twenty-five years without being able to save anything so as to provide 
her with this protection, then we must expert that cheerfulness, op- 
timism and buoyancy will not characterize her conduct. Any teacher 
should be privileged to save out of her salary each year at least $200 
or $250. The savings salary should be added to the existence salary. 

In addition to these salaries every board of education should pay 
its teachers a third salary, an improvement salary. This salary 
should be large enough so that a teacher may attend the theatre oc- 
casionally, go to lectures or a musical, subscribe for professional maga- 
zines, buy professional books, attend an occasional summer school, do 
some traveling and have certain small benevolences. We expect our 
teachers to be persons of culture and refinement in our communities. 
We expect them to be good citizens, and good neighbors; we expect 
them to continue to grow and to increase in worth to themselves and 
to the community. This cannot be done without larger salaries. How 
much are we willing to spend each year on the average teacher for books, 
magazines, travel, benevolences, lectures, culture, refinement, growth? 
Two hundred to two hundred and fifty dollars a year is a small enough 
amount for teachers to devote to these purposes. Now if you will add 
to your existence salary, the savings salary and the improvement 
salary, you will have the minimum salary which should be paid any 
teacher in your community. 

But, my friends, there is a fourth salary- which should be added. 
It is a merit salary. Clearly those who have superior skill, superior 
merit, unusual ability , should receive it. I wish to hold out some 
ultimate rewards to those who are coming into teaching. If we add 
$250 for savings and $250 for improvement, I should add somewhere 
between $300 and $500 more for merit, real merit, unquestioned merit. 
When these four salaraies are added, you would then have the least 
salary which should be paid any person of real merit and ability in 
your schools. Using these as a base you now move forward adding 
here and there for training and for experience, and for the type of posi- 
tion the teacher holds or the character of the work she does. 

I have made no effort to estimate the maximum salary that should 
be paid a teacher. I do not believe we know what that should be, 
but I believe the maximum salary paid an unusually successful teacher 
should be much larger than the salary which she now receives. Talent 
and genius should be attracted to teaching quite as much as they are 
attracted to other' lines of service and this will not be true until the 
public more richly rewards those who are going into teaching. 

It must be very clear to every thinking person that "the only safe 
foundation for a democracy in peace and war is a wide flung system of 
public education. Our victories upon land and sea will be more or less 
empty, our loud shouting and paens of victory may be turned into dirges 
of regret unless with the same enthusiasm, the same heroic courage, 
we turn to the more quiet and prosy field of endeavor and, as state 
officers, as members of the legislature, as leaders in civic and social life, 
as the officers of public education, we rededicate ourselves to the only 

21 



safe policy — the education of all the children of all the people of our 
commonwealth by a teaching force fitted in character and personality 
and qualified with academic and professional training. If it requires 
new laws, in the name of heaven let us have them. If it requires more 
money, no lover of his country, no real patriot will hesitate to pro- 
vide it." 

President Willard introduced to the Conference the other mem- 
bers of the State Board: Mr. J. W. Hunt of Duluth, Mr. Julius Boraas 
of Northfield, Mr. Thomas E. Cashman of Owatonna, and Mrs. R. D. 
Musser of Little Falls. 

The meeting was then open for general discussion, and several 
board members addressed the Conference on various phases of the ques- 
tion under consideration. 

A request was made that the material given to the meeting be print- 
ed for distribution, and this report is intended to meet the request. 

A movement to adjourn was followed by a proposal that the school 
boards form an organization for the purpose of dealing with this and 
other questions of common interest. It was pointed out by Mr. A. B. 
Cheadle of Jackson, V. E. Anderson of Wheaton and others that a 
school board organization already exists in the School Board Section 
of the Minnesota Educational Association. Conflicting opinions were 
expressed as to whether this existing association could serve the purpose 
or whether a new organization should be formed. After much discussion,, 
a motion prevailed that a temporary organization be made with Hon. 
G. B. Bjornson of Minneota as chairman, and Mr. V. E. Anderson 
of Wheaton as secretary, he being secretary of the existing School 
Board Section. Mr. Bjornson took the chair and addressed the Con- 
ference. After some discussion, a motion prevailed, making the temp- 
orary organization permanent, but for this meeting only. 

Much general discussion followed, centering mostly on the ques- 
tion of whether or not a new school board organization should be 
formed. Mrs. H. Witherstine of Rochester, President of the School 
Board Section of the Minnesota Educational Association, was called 
on and addressed the Conference, setting forth the efforts of the offi- 
cers to make the association serve the needs of the school boards, and 
urging more interest than had heretofore been manifested. 

After further discussion, a motion was made by Mr. H. D. Bloyer 
of Remer, Cass County, and seconded by several members, "To extend 
a vote of thanks to the State Board of Education and approve the 
proposed minimum salary presented to us today." 

This motion was carried by a large majority. The Conference 
then adjourned. 



The State Board of Education at its quarterly meeting held April 
5, 1°20, all members being present, voted as follows: 

That no state aid, the distribution of which is controlled by the 
Board, be grated for the year 1920-21 to any school which does not pay 
in all cases at least the following minimum salaries: 

(The schedule is that given on page 11 of this report.) 

22 



That a letter be prepared and sent to all teachers in the state, 
urging on them a favorable attitude in the emergency that exists in 
our schools, and which has been under consideration by school boards. 

That a report of the Board's efforts to deal with the teacher short- 
age and salary situation in the state be prepared and printed for dis- 
tribution to school board members and others interested. 

A letter under date of April ninth was sent to all school boards 
notifying them of the action taken relative to minimum salaries. 

In accordance with the instructions of the Board, the following 
letter was prepared and sent to all teachers under date of April 19th: 
To Superintendents and Teachers: 

The great social and economic disturbance through which 
we have been passing has seriously affected our schools. 
It has produced a state of mind in many teachers distinctly 
unfavorable to the best teaching. It has worked economic 
hardship on those who have remained and has caused many 
to leave the educational field to accept unusual financial in- 
ducements elsewhere. It is natural that the atmosphere of 
speculation and unrest in which we are living should affect 
Teachers as it does others and that they should seek their own 
advantage in the process of economic readjustment. 

Teachers in most schools have found themselves over- 
whelmed by mounting costs of living and many have appealed 
to their boards for increased pay. The tendency among 
boards has been to meet the condition with at least a fair 
degree of liberality considering the fact that budgets for the 
year had already beeil fixed. Some have given relief without 
request. 

Sometimes a teacher has broken a contract, either be- 
cause she felt that she was unjustly treated or because she 
was tempted by a higher salary elsewhere. Such cases have 
happily been rare, although in a few other instances, this 
office has had occasion to urge the moral obligation of a legal 
contract. 

In planning their budgets and electing teachers for next 
year boards are generally manifesting a decidedly liberal 
policy. Throughout the state they are announcing their 
willingness to pay good salaries for competent teachers. 
A tendency is clearly evident on their part to rise to the oc- 
casion insofar as they feel that the resources of their districts 
will permit. 

The public is demanding and is offering to pay for su- 
perior efficiency; for well trained teachers; for those who are 
growing professionally. The opportunity was never so great 
nor the outlook so promising. 

Teaching is public service and should be so regarded 
by those who engage in it. The public is being educated 
to pay more liberally for teaching and is making marked 
progress. Influential forces have interested themselves in 
behalf of the teachers and the outcome is hopeful. 

23 



This letter is written: 

1. To carry whatever note of optimism it may. 

2. To urge on teachers the importance of responding 
to the emergency in public education which now confronts us. 
The times are critical. We need all our teachers and we 
need their best service as we never have before in our history. 
In face of the direst need for the best teaching, some of our 
schools are closed; others are taught by those who should 
themselves be pupils. Many children in this great state of 
ours are not receiving the education which the crisis in our 
affairs demands. There is a genuine call to public service 
to which only those trained as teachers are able to respond. 

May I not then urge on all teachers and superintendents 
the seriousness of the situation and appeal to them for their 
utmost cooperation in meeting it. It would be unfortunate, 
indeed, if the public in the midst of its difficulties and with 
its good intentions should gain the impression that those who 
are engaged in school work were placing salary above service. 
We know that such is not the spirit of the craft. 

In some cases boards are finding it difficult to close con- 
tracts with teachers for next year at any salary. I am hoping 
that with the situation as well cleared up as it now is the 
spirit of unrest and uncertainty may subside; that our schools 
may now find teachers imbued with the traditional spirit 
of service, on whom they can depend for next year's work; 
and that we may all turn our undivided efforts to the great 
work that is before us. 

James M. McConnell, 

Commissioner of Education. 

The preparation and distribution of this bulletin is in compliance 
with the intention of the State Board to place in the hands of the school 
boards of the state a full report of the facts presented and the various 
actions taken. 



24 



Syracuse, N. Y. 
PAT. JAN. 21, 1908 






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